Recruiting & Retaining Women: A Self- Assessment Guide for Law Enforcement

U.S. Department of Justice
Office of Justice Programs
Bureau of Justice Assistance
Recruiting & Retaining Women: A SelfAssessment Guide for Law Enforcement
Under a grant from the U.S. Department of Justice, Bureau of Justice
Assistance, the National Center for
Women & Policing (NCWP) developed a self-assessment guide to assist
agencies seeking to recruit and retain
more women in sworn law enforcement positions.The resulting publication, Recruiting & Retaining Women: A
Self-Assessment Guide for Law Enforcement, is designed to help federal, state,
and local law enforcement agencies
examine their policies and procedures
to identify and remove obstacles to
hiring and retaining sworn and civilian
women employees at all levels within
the organization. It also provides a list
of resources for agencies to use when
they plan or implement changes to
their current policies and procedures.
The guide promotes increasing the
number of women at all ranks of law
enforcement as a strategy to strengthen community policing, reduce police
use of force, enhance police response
to domestic violence, and provide
balance to the workforce. Research
conducted in the United States and
internationally demonstrates that
women police officers use a style of
policing that relies less on physical
strength, can effectively de-escalate
potentially violent confrontations, are
less likely to become involved in
the use of force, and respond
effectively to violence against
women.
Resources for Law
Enforcement Agencies
This bulletin provides a brief
overview of the information and
resources available in Recruiting
& Retaining Women: A SelfAssessment Guide for Law Enforcement. Each chapter of the guide
contains the following sections:
❑
Statement of the
Problem. Administrators
must understand the issues
involved in hiring and retaining women before they can
improve or implement new
policies and procedures. In
this section, the most common problems found in law
enforcement agencies are
discussed in detail to help
Michigan State Police Recruiting Poster
agencies gain a more thorough understanding of the
that may require legal input and
obstacles that exist to hiring and
review. Because employment law
retaining women.
is frequently the subject of litigation
❑
Legal Issues. This section alerts
administrators to issues involved in
the hiring and retaining of women
and collective bargaining agreements,
all changes to personnel policies and
procedures should be reviewed with
legal counsel before implementation.
❑
❑
❑
Possible Solutions, Model
Policies, and Practices. This section provides solutions that may
help agencies remove obstacles to
hiring and retaining women.The
detailed suggestions give practical
guidance about each issue discussed
in the problem statement.
Whenever possible, the guide
includes descriptions of model policies being used by law enforcement
agencies.
Expert Assistance, Reference
Materials, Contact Persons,
and Other Useful Information.
References, resources, and names of
persons or agencies with pertinent
expertise and innovative programs
are provided. In addition, a complete
bibliography of related articles is
included at the end of the guide.
Any future updates on innovative
programs and model policies, contact
information, and bibliographies will
be provided on NCWP’s Web site
at www.feminist.org/police/ncwp.asp.
Checklist. A comprehensive
checklist at the end of each chapter
provides an overview of the steps
involved at each stage of the selfassessment process.At a glance,
users of the guide can determine
whether they have reviewed key
policies and practices that have
an impact on each major area of
agency operations being assessed.
Hiring and Retaining
Women: The Advantages
to Law Enforcement
Agencies
Nationwide, law enforcement agencies
are confronting enormous challenges
in recruiting qualified candidates, yet
traditional recruiting strategies frequently overlook an entire pool of
potential applicants—women.The number of women in law enforcement has
remained small and the rate of increase
slow. Recent surveys show that only
14.3 percent of sworn personnel are
women, with an annual increase of only
0.5 percent over the past several years.1
Law enforcement today is facing a crisis
of public confidence and trust. Highly
publicized incidents of police use of
excessive force have generated headlines in cities around the country.
Police brutality and corruption lawsuits are costing taxpayers millions of
dollars each year, and the frequency
and associated costs of such incidents
are increasing.2 Concurrently, police
leaders and executives are under pressure to implement community- or
service-oriented policing, transforming
the very nature of the relationship
between law enforcement and the
communities it serves. Nationwide,
communities are demanding that law
enforcement agencies take a more
modern approach to policing that
emphasizes communication and cooperation with citizens and communityinvolved problem solving.
When reviewing this information, one
may wonder, “What does all of this
have to do with hiring and retaining
more women?” Research conducted
both in the United States and internationally clearly demonstrates that
women police officers use a style of
policing that relies less on physical
force.They are better at defusing and
de-escalating potentially violent confrontations with citizens and are less
likely to become involved in incidents
of excessive force.Additionally, women
officers often possess better communication skills than their male counterparts and are better able to facilitate
the cooperation and trust required
to implement a community policing
model.Thus, hiring and retaining more
women in law enforcement is likely
to be an effective means of addressing
the problems of excessive force and
citizen complaints.
Increasing the representation of
women on the police force should
address another costly problem for
police administrators—the pervasive
problem of sex discrimination and
sexual harassment—by changing the
climate of modern law enforcement
agencies. Finally, female officers often
respond more effectively to incidents
2
of violence against women—the single
largest category of calls received by
local police agencies nationwide.3
Assessing a Law
Enforcement Agency
Many approaches can be used to
conduct an assessment of a law
enforcement agency.To conduct a
comprehensive assessment, sufficient
resources must be allocated and as
many women as possible from all ranks
within the agency should be involved
in the assessment process.The guide
offers practical advice on establishing a
process to assess an agency on issues
that pertain to recruiting and retaining
women and recommends different
approaches to assessment and who
should be involved in the process.
Developing a Job
Description
Many job descriptions for law enforcement officers are outdated and do not
reflect the knowledge, skills, and abilities needed for a community policing
model.To develop the best job description for law enforcement officers, law
enforcement agencies should emphasize
the value that the organization places
on community policing and detail the
skills and duties required to successfully implement community policing
practices. For example, the job description should highlight skills such as the
ability to de-escalate violent situations,
communicate with diverse groups of
people, mediate disputes, and collaborate with other government and social
service agencies to solve problems.
Recruiting Quality
Candidates
Nationwide, law enforcement agencies
are having difficulty recruiting women
in large part because recruiting programs have not focused specifically
on finding quality women candidates.
Following are a few of the suggestions
presented in the self-assessment guide
to help agencies improve their recruiting programs.The guide is far more
Recruiting & Retaining Women
comprehensive; agencies that wish to
increase their numbers of women officers are encouraged to read the guide
in its entirety.
Develop an effective recruiting
program. To successfully increase
the number of women in policing, law
enforcement agencies should develop
a specific plan of action that targets
women in the recruiting process and
emphasizes the agency’s desire to significantly increase the number of women
in its ranks.The self-assessment guide
contains many recommendations to
help achieve this goal, including forming
a recruitment committee and designing
recruitment posters that feature women.
Use the media to increase
recruitment of women officers.
Agencies should undertake activities
that maximize media attention and
exposure for the department’s efforts
to recruit more women as law enforcement officers.The guide offers many
suggestions on how to get the desired
media exposure, including maintaining
a Web site, advertising in publications
with high female readership, and hosting
career fairs or open houses that allow
women to learn more about the job.
Monitor recruitment efforts.
Once a recruitment program is implemented, staff should continually monitor
and evaluate it to determine what works
and what changes may need to be made.
To effectively monitor and evaluate
recruitment efforts, the employment
application for law enforcement officers should contain questions about
how the applicant learned about the
position. Careful data should be kept
to determine which pieces of the
recruitment plan are successful.
Removing Obstacles in the
Selection Process
In addition to broadening outreach
activities to attract more women
applicants, agencies must examine
their selection processes to identify
and remove obstacles that have had
an adverse impact on the hiring of
women.With appropriate data collection, it is easy to discover where
women are being “washed out” in
the hiring process and identify which
aspects of the process should be
examined for gender bias. Improving
the testing process that each applicant
must complete will help agencies select
Six Advantages for Law Enforcement Agencies That Hire and Retain More Women
1.Women officers are proven to be
as competent as their male counterparts. Research studies show no
meaningful difference between male
and female officers in their activities
or productivity on patrol, their commitment to law enforcement organizations, their response to violent
confrontations, and their performance evaluations received both at
the academy and on the job.*
2. Women officers use a style of
policing that relies less on physical
force, and they are less likely to
become involved in incidents of
excessive force.**
*
See for example, Snortum, John R., and
John C. Beyers,“Patrol Activities of Male
and Female Officers as a Function of Work
Experience,” 1983, Police Studies 6: 63–142;
Fry, Louis W., and Sue Greenfeld,“An
Examination of Attitudinal Differences
Between Policewomen and Policemen,”
1980, Journal of Applied Psychology 65(1):
123–126; Grennan, Sean A.,“Findings on
the Role of Officer Gender in Violent
Encounters With Citizens,” 1987, Journal
of Police Science and Administration 15(1):
78–85; Jones, Catherine A.,“Predicting the
3. Women officers bring skills
and abilities to the job that help
implement community-oriented
policing, which facilitates cooperation and trust between police officers and citizens.
4. More women officers will improve a law enforcement agency’s
response to domestic violence
against women—the largest single
category of calls to local police
departments.
5. Increasing the presence of female
officers reduces the prevalence of sex
discrimination, under utilization, and
sexual harassment within an agency
Effectiveness of Police Officers,” in Women
Police Officers: Current Career Profile,
Springfield, IL: Charles C.Thomas.
**
See for example, Horvath, F.,“The Police
Use of Deadly Force:A Description of
Selected Characteristics of Intrastate
Incidents,” 1987, Journal of Police Science
Administration 15: 226–238; National
Center for Women & Policing, 2000,
Gender Differences in the Cost of Police
Brutality and Misconduct: A Content Analysis
of LAPD Civil Liability Cases: 1990–1999,
3
by reducing the numeric underrepresentation of female officers.
6. The presence of women in a law
enforcement agency can bring about
beneficial changes in policy for all
officers. For example, one scholar
noted that “the introduction of
women will create an incentive . . .
to examine many management practices that are less acceptable now
that they must be applied to men
and women alike.This may result in
the development of improved selection criteria, performance standards,
and supervision for all officers.Ӡ
retrieved April 25, 2001, from the World
Wide Web: www.feminist.org/police/
ExcessiveForce. html; Independent
Commission on the Los Angeles Police
Department, 1991, Report of the Independent Commission on the Los Angeles Police
Department: Summary, Los Angeles, CA:
Independent Commission on the Los
Angeles Police Department: 17.
†
Bloch, Peter B., and Deborah Anderson,
1974, Policewomen on Patrol: Final Report,
Washington, DC:The Urban Institute: 1–67.
❑
Screening applicants for the skills
needed for domestic violence calls
and the propensity to use violence.
Designing Quality Recruit
Academies and Field
Training Programs
Biased training academies and field
training programs can wash out a large
number of women recruits.The bootcamp model of training should be
replaced with training that is based
on adult learning techniques. Studies
have shown that adults respond best
to training that is varied in presentation such as video, lecture, and roleplaying. Experts in adult learning should
be consulted and should assist in developing effective training programs.The
guide discusses how to do the following:
Michigan State Police Recruiting Poster
the best candidates for positions as
community police officers and will
protect agencies from discrimination
lawsuits.
Areas of the selection process that
should be examined include—
Physical testing. Entry-level physical
ability tests are often outdated, are
not job-related, and test for physical
requirements not needed to perform
the job of a modern law enforcement
officer.Test developers should carefully
and thoroughly evaluate the physical
duties to be performed by law enforcement officers.
Written examinations. As a group,
women usually do quite well on written examinations. However, these tests
may have an adverse impact on women
and men of color and, if they do, the
agency must demonstrate that the
questions are job-related and are being
asked to predict job success. Legal and
testing experts should be consulted
when agencies design or revise written examinations.
Oral interviews. The structured oral
interview is an area in which gender
bias may manifest itself and have a
negative impact on women.The oral
interview panel should be gender and
racially diverse and include members
of the local community. Sworn and
civilian law enforcement employees
also may be used as panelists.All raters
should be supportive of women in
policing and thoroughly trained in the
rules of the interview process.The
questions developed for the oral interview should test for the skills and abilities needed for community policing,
including the ability to work with all
types of people, de-escalate violence,
mediate disputes, and solve problems.
The same questions should be asked of
each candidate, regardless of whether
the candidate is male or female.
Background investigations. A good
background investigation is crucial to
hiring the right person. Background
investigators should have a thorough
understanding of the types of persons
the chief executive of the law enforcement agency wants to hire.The selfassessment guide provides information
on how the background investigation
process can be improved to ensure that
candidates are thoroughly and fairly
screened. Some of the procedures
covered in the guide are—
❑
❑
Screening and training background
investigators.
Screening applicants for gender bias.
4
❑
❑
❑
❑
❑
❑
❑
❑
❑
Establish a training committee.
Develop a training curriculum.
Select academy instructors.
Develop a physical fitness and skills
training program.
Train recruits in the use of
firearms.
Maintain a harassment-free work
environment.
Select field training officers (FTOs).
Review the field training program
and its officers.
Monitor the progress of recruits.
Mentoring To Increase
Retention
Because women continue to be
underrepresented in law enforcement,
they face additional challenges. Most
significantly, sexual harassment and
gender discrimination continue to be
key reasons women cite for leaving
law enforcement.4 Women report that
they often feel isolated when they join
the department and have no one to
whom they can turn for advice or support. Mentoring programs can assist in
the retention and promotion of female
employees.The goal of creating such
programs is to cultivate one-to-one
partnerships between new and veteran
Recruiting & Retaining Women
officers that will encourage employees
to reach their fullest potential as law
enforcement professionals.
Valuing Civilian
Employees
In most law enforcement agencies,
a large percentage of the civilian
employees are women. Law enforcement agencies need to be aware
of employment issues facing these
employees. For example, promotional
opportunities have frequently been
limited for civilian personnel and
should be expanded at every opportunity, including consideration of qualified candidates for sworn positions.
Other possible solutions and incentives include ensuring equal pay and
benefits, using inclusive language when
speaking to both sworn and civilian
members, and including civilian members in training programs designed
for sworn members.
Implementing FamilyFriendly Policies
Many law enforcement administrators
are worried about retaining qualified
women officers.When one study examined why women left the Canadian
police force at almost twice the rate
of men, women cited family-related
issues (i.e., pregnancy and childcare) as
the main reasons they left policing.5
The first step a department can take
is to develop a comprehensive policy
regarding pregnancy and childcare
issues.A department’s policy should
cover the following areas:
❑
❑
❑
❑
❑
Eligibility for and duration of
pregnancy and childcare leave.
Light duty.
Range qualification.
Uniforms.
Disability insurance and paid leave
benefits.
Monitoring Performance
Evaluations
Performance evaluation systems are
often problematic for law enforcement agencies. Many agencies that
have adopted community-oriented
policing have not yet updated their
performance evaluation systems.
Therefore, officers may be evaluated
on behaviors that differ from the
desired behaviors. Because performance evaluations are frequently used
as the basis for making decisions on
transfers, specialty assignments, and
promotions, a fair and unbiased evaluation system is essential to a law
enforcement agency. Possible means
of creating such a system include
determining what performance skills
should be evaluated, determining how
those skills should be measured, setting performance goals, and reviewing
evaluations for bias.
Assignments and
Promotions
Many law enforcement officers pursue
assignments to specialty units. Not
only do these assignments provide
new challenges and duties, they also
help broaden the officer’s experience
and enhance promotional opportunities. For those reasons, assignments
can be an area in which discrimination
occurs.Two main areas of concern
exist regarding promoting women in
law enforcement. First, the promotional process and criteria may be biased
against women. Second, women may
choose not to apply for promotions.
To encourage women to seek promotions, agencies should actively recruit
and promote women through promotional processes that are fair and unbiased and ensure that the agency has
family-friendly programs in place.
A review of the entire promotional
process should be undertaken to
identify where women are eliminated
or rated lower than men.
5
Preventing Sexual and
Gender Harassment,
Discrimination, and
Retaliation
Sexual harassment is prevalent in most
law enforcement agencies. Studies have
found that 60 to 70 percent of women
officers experienced sexual/gender
harassment. Interestingly, only 4 to 6
percent of these women ever reported
the harassment.6 This lack of reporting
can be directly attributed to the code
of silence in law enforcement agencies
and the severe retaliation that occurs
when women report misconduct.
Agencies need to have strong policies
and directives that prohibit such conduct, directives for immediate investigation of allegations of unlawful acts,
and appropriate disciplinary measures
in place in case such allegations are substantiated.The guide outlines in detail
what measures should be taken and
how personnel should be trained to
prevent such activities in the workplace.
Ensuring Impartial
Internal Investigation
and Discipline Systems
An effective and fair internal investigation system is crucial to maintaining
the credibility and responsiveness of
law enforcement. Most law enforcement agencies have a system for
receiving and investigating complaints
of officer misconduct. Unfortunately,
the very systems that are established
to investigate officer misconduct have
the potential to be misused as tools to
harass or retaliate against employees.
Women officers have reported that
when they filed complaints of discrimination or harassment, they became
subsequent targets of internal investigations based on complaints that were
often anonymous or false.To prevent
such incidents from taking place, law
enforcement agencies should have
written guidelines that clearly spell
out the process for reporting and
investigating allegations of misconduct.
Safeguards must be built into the investigation process to prevent retaliation
against persons who report misconduct.
Developing Effective
Awards and Recognition
Programs
Many law enforcement agencies use
award programs to motivate their
employees.Traditionally, recognition is
given only for heroism or for solving a
major crime case. Some agencies give
awards to employees who have been
part of successful, innovative programs.
Very few agencies give awards or recognize employees whose work reflects
the principles of community policing.
Even fewer agencies recognize those
that maintain a workplace free of
harassment and discrimination, mentor
women and minorities, or increase the
diversity of the workforce. Law enforcement agencies can use the issue of
awards and recognition as an opportunity to gain employee and community
input.A diverse committee should be
established to develop criteria for
formal awards.The following are examples of ways to recognize employees
who support community policing and
diversity in the workplace:
❑
❑
❑
Assign the employees to highly
desirable positions.
Select personnel for special training
programs or conferences.
Promote people who have demonstrated an understanding of and
support for the concepts of community policing.
Assistance Available to
Law Enforcement
Agencies
To assist law enforcement agencies
that wish to increase the number of
women employees in their workforce,
the National Center for Women &
Policing offers the following services:
❑
A regional training seminar on
recruiting and retaining women.
This 2-day seminar helps law
enforcement agencies develop
effective recruiting programs to
increase the number of female
employees.
❑ Online updates to the selfassessment guide. New programs
in law enforcement agencies across
the country are described on the
Web site and readers can gain
access to the latest research about
women in policing and other critical issues (www.feminist.org/police/
ncwp.asp).
❑ Onsite consulting by a team of professional law enforcement experts
to help agencies identify and remove
obstacles to recruiting and retaining
women.
For additional information on
these services, contact the National
Center for Women & Policing at
323–651–2532 or via e-mail at
[email protected].
Notes
1. National Center for Women &
Policing, 2000, Equality Denied:The
Status of Women in Policing: 1999,
Los Angeles, CA: National Center
for Women & Policing.
2. Kappeler,Victor E., Stephen F.
Kappeler, and Rolando V. Del Carmen,
1993,“A Content Analysis of Police
Civil Liability Cases: Decisions of the
Federal District Courts 1978–1990,”
Journal of Criminal Justice 21: 325–337.
3. Homant, Robert J., and Daniel B.
Kennedy, 1985,“Police Perceptions of
Spousal Abuse—A Comparison of
Male and Female Officers,” Journal
of Criminal Justice 13: 29–47.
4.Williams, Julie, 2000,“Mentoring
for Law Enforcement” FBI Bulletin,
Washington, DC: Federal Bureau of
Investigation: 19–25; Poole, Eric D.,
and Mark R. Pogrebin, 1988,“Factors
Affecting the Decision to Remain in
Policing: A Study of Women Officers,”
Journal of Police Science and Administration 16(3): 49–55.
6
5. Seagram, Belinda Crawford, and
Connie Stark-Adames, 1992,“Women
in Canadian Urban Policing: Why Are
They Leaving?,” The Police Chief
October: 120–127.
6. Polisar, Joseph, and Donna Milgram,
1998, “Recruiting, Integrating, and
Retraining Women Police Officers:
Strategies That Work,” The Police Chief
October: 42–53.
For Further Information
For further information about
Retaining & Recruiting Women: A SelfAssessment Guide for Law Enforcement,
contact:
National Center for Women &
Policing
8105 West Third Street
Los Angeles, CA 90048
323–651–2532
World Wide Web:
www.feminist.org/police/ncwp.asp
E-mail: [email protected]
Bureau of Justice Assistance
810 Seventh Street NW.
Washington, DC 20531
202–514–6278
World Wide Web:
www.ojp.usdoj.gov/BJA
Copies of the guide are available from
the BJA Clearinghouse.
Bureau of Justice Assistance
Clearinghouse
P.O. Box 6000
Rockville, MD 20849–6000
1–800–688–4252
World Wide Web: www.ncjrs.org
Clearinghouse staff are available
Monday through Friday, 8:30 a.m. to 7
p.m. eastern time.Ask to be placed on
the BJA mailing list.
U.S. Department of Justice
Response Center
1–800–421–6770 or 202–307–1480
Response Center staff are available
Monday through Friday, 9 a.m. to
5 p.m. eastern time.
Recruiting & Retaining Women
Acknowledgments
Chief Penny Harrington, Director
of the National Center for Women
& Policing, is the principal author of
the guide and received input and
assistance from an advisory board
made up of the following people:
Research Director John Firman,
International Association of Chiefs
of Police.
Undersheriff Carol Daly,
Sacramento County Sheriff’s Office,
California, representing the National
Sheriffs’ Association.
Executive Director Sylvester
Daughtry, Commission on
Accreditation for Law Enforcement
Agencies, Inc.
Executive Director Robert
Stewart, National Organization of
Black Law Enforcement Executives.
U.S. Marshal Rosa Melendez,
U.S. Marshals Service, representing
the Hispanic American Police
Commanding Officers Association.
Commander Gary Gee, Bay Area
Rapid Transit Police, representing
the Asian American Commanding
Officers’ Association.
Ombudsman Laura GoodmanBrown, Minnesota State Office of
Crime Victims’ Ombudsman, representing the International Association
of Women Police.
Chief Katherine Baldwin, U.S.
Department of Justice, Civil Rights,
Employment Litigation Section.
Steve Stanard, CEO, Stanard
and Associates.
National Coordinator
Katherine Spillar, Feminist
Majority Foundation.
Chief Charles Moose,
Montgomery County Police
Department, Maryland.
Sheriff Margo Frasier, Travis
County Sheriff’s Office,Texas.
Chief Annette Sandberg,
Washington State Patrol.
The self-assessment guide was field
tested by the Fairfax County Police,
Virginia (headed by Chief Richard
Rappoport), and the Boise Police,
Idaho (headed by Captain Mike
Prynch).
The following people also contributed to the guide:
Kimberly Lonsway, Research
Director, National Center for
Women & Policing.
Senior Researcher Alex Besser,
National Center for Women &
Policing.
Assistant Chief Roberta
Webber, Portland Police
Department, Oregon (retired).
Captain Ronald Webber,
Portland Police Department,
Oregon (retired).
Records Manager Debra
Haugen, Portland Police
Department, Oregon.
The following Bureau of Justice
Assistance staff members participated in the development of the guide:
Senior Advisor Luke Galant.
Program Manager Jeannie
Santos.
Leila Wieser,Writer/Editor,
Aspen Systems Corporation, provided editorial and production support
for this bulletin.
This document was prepared by the National Center for Women & Policing,
under grant number 1999–LD–VX–0003, awarded by the Bureau of Justice Assistance, Office of Justice Programs, U.S. Department of Justice. The opinions,
findings, and conclusions or recommendations expressed in this document are
those of the authors and do not necessarily represent the official position or
policies of the U.S. Department of Justice. The Bureau of Justice Assistance is
a component of the Office of Justice Programs, which also includes the Bureau
of Justice Statistics, the National Institute of Justice, the Office of Juvenile
Justice and Delinquency Prevention, and the Office for Victims of Crime.
NCJ 188157
June 2001
7